Section 4: Recommended Sidewalk and Crosswalk Standards
Because the City of Morgantown is an older river city with growing traffic problems and a limited number of streets in its street grids, there has been a tendency in public decision-making to reduce attention previously given to sidewalk installation. In the late 19th Century and early 20th Century development of the older sections of the City, such as, South Park, Greenmont, Wiles Hill, Woodburn and Sunnyside, sidewalks (and street car transit) were considered to be essential elements in local transportation. Since 1940, however, sidewalks constructed have tended to be narrower than both older sidewalks and modern standards. They have less buffer space between the street traffic lanes and the pedestrian walking areas, and they are less pervasive in their construction. In addition, older sidewalks have often failed to be maintained by property owners. Furthermore, the City has not required property owners to comply with maintenance standards set forth in the City Code. New construction of low density residential buildings has often involved the successful petitioning for waivers of City Code requirements to include sidewalks as part of project plans.
It is important, however, that in working toward a more walkable and livable city, changes in policies and practices need to be revisited and earlier sidewalk construction priorities and standards be revived. It is also vital that the City work to have each of its sidewalks meet basic ADA standards where physically practical so that city pedestrians of all ages and abilities are able to move throughout the City.
The ADA requires that sidewalks be constructed so that they are a minimum of 3 feet in width. A 5 foot standard is recommended by both the Federal Highways Administration and the Institute of Transportation Engineers persons. This width allows two persons to pass comfortably or to walk side-by side. This standard is recommended by the Board where practical in the City of Morgantown. Further, it is recommended that 5-foot or wider sidewalks be installed near schools, at transit stops, and in any downtown or commercial area where there is likely to be a high concentration of people.
The USDOT, the Highway Safety Research Center and the Pedestrian and Bicycle Information Center recommend that sidewalks be continuous along both sides of the street and fully accessible to all pedestrians. USDOT guidelines also divide a sidewalk into four zones as shown in Figure 1:
Figure 1: ADA accessible crosswalk
A curb zone is described as the first 6 inches of a sidewalk corridor which is located adjacent to the roadway. It provides important function by channeling storm water away from a sidewalk. It also discourages vehicles from entering a sidewalk area and is an essential component of a sidewalk. Multiple macadam pavings without proper removal of older material diminish the effectiveness of sidewalk curbs.
A planter/furniture/signage zone which serves as a buffer zone of 4 to 6 feet is recommended to separate the pedestrian area of the sidewalk from the traffic lanes. In areas similar to High Street, street furniture (such as benches, bicycle racks, transit shelters, waste receptacles, callbox telephones, fountains, clocks, street light and sign poles) and planting areas serve as effective applications in buffer areas. Parked cars and bicycle areas on streets can also augment on-sidewalk buffer zones.
Street trees, as utilized in locations such as South Park and High Street, are of major value in planter zones. Not only do they increase the sense of safety for pedestrians, they also provide shade for pedestrians, the pavement, and the adjacent buildings; help to reduce pollution and storm water run-off; reduce costs in pavement replacement; cool sidewalk areas and adjacent buildings; create an aesthetic environment; create a sense of place; and increase the public and private value of the location. It is important that sidewalks be built around mature trees whenever possible. The importance of street trees to pedestrian thoroughfares is discussed further in Section 7.
Pedestrian travel zones are zones which are free of all obstacles and protruding objects. On local or collector streets the minimum must be 3 feet. However, it is recommended by the Board that a minimum of 4 feet be used along these streets, and a minimum of 6 feet on major streets. The majority of current City projects meet the 4 foot recommendation. Pedestrian travel zones are preferred.
The building frontage zone is an area between the pedestrian travel zone and a building wall. Pedestrians do not feel comfortable walking directly adjacent to a building or a fence taller than 4 feet. Pedestrians are reported to prefer to keep at least 2 feet of “shy” distance away from a building wall.
As a practical matter, the City of Morgantown cannot expect to meet the 5 foot minimum sidewalk width recommended by the Pedestrian Safety Board on all sidewalks nor the USDOT standards for buffers. Many of the older neighborhoods in the City have 4 foot sidewalks which meet the needs of those areas. The width of the sidewalk on a neighborhood street which does not serve as a connector to a major thoroughfare is not a significant concern. Where traffic is heavy and/or moving at high speed, however, exceeding minimum width and buffer zones becomes a matter of critical importance in addressing the safe walkability of the City. A 5-foot sidewalk allows two persons to walk comfortably or to walk side-by side if there is a buffer between the sidewalk and the street. According to the U.S. Department of Transportation standards on accessible sidewalks, sidewalks in downtown commercial areas should be a minimum of 11 feet, which provides a 4 foot planting/furniture/signage zone as a safety buffer from vehicular traffic, a 5 foot pedestrian travel zone, and a 2 foot frontage zone.
In many Morgantown locations, right-of-way constraints, retaining walls, and property lot sizes create serious problems for developing sidewalks according to standards. In order to create a safe, handicapped-friendly, walkable city, however, the City must take steps to increase sidewalk width whenever possible.
Accessible Cross Slope and Curb Ramps
A 1:50 or 2% cross slope of a sidewalk assures that the sidewalk allows for accessible travel by physically challenged populations. In addition a 2% slope enables the surface of the sidewalk to drain surface water toward the street and to reduce the presence of standing water that can be susceptible to freezing in colder months.
Curb ramps provide means for transition between elevated sidewalks and crosswalk areas. Mandated by the 1973 Rehabilitation Act and the 1990 Americans with Disabilities Act, curb ramps must be installed at all intersections and mid-block locations where pedestrian crossings exist or where sidewalks terminate. If a curb ramp is located where pedestrians must walk across the ramp, it shall have flared sides; the maximum slope of the flare shall be 1:10. The least possible slope shall be used for any ramp. The maximum slope of a ramp in new construction shall be 1:12.
According to the USDOT Pedestrian and Bicycle Information Center a separate curb ramp for each crosswalk at an intersection should be provided where feasible. Single ramps at a corner for both crosswalks can be problematic – especially for visually impaired persons.
Detectable warning areas on curb ramps as specified by ADA guidelines enable visually impaired persons’ to identify the transition between a sidewalk and a street. The ADA currently requires the use of truncated domes on access ramps.
According to an early 1990’s study on Pedestrian Crash Types published by the Federal Highways Administration, pedestrians have the highest risk in the traveling public because they are the least protected. Nationally, pedestrians were identified as representing 14% of all traffic fatalities even though walking accounts for only 3% of the total travel trips. The study’s analysis states that pedestrian accidents occur most often when a pedestrian is attempting to cross a street either at an intersection or a mid-block location.
Intersections also can be one of the primary barriers for persons of different ages and impairments to achieve accessibility and mobility. Every accommodation needs to be made to make street crossings manageable for all people.
Again, according to the Pedestrian and Bicycle Information Center, “at both signalized and unsignalized intersections, there is an implied (legal) crosswalk for pedestrians at each leg, whether or not the crosswalk is marked. The only time this is not true is when there is a sign clearly prohibiting pedestrians from crossing one or more legs. Midblock crossings that are marked may have other physical features and signs.”
The primary function of marked crosswalks is “to highlight the right-of-way where motorists can expect pedestrians to cross and to designate a stopping or yielding location.” The function of crosswalks is also to inform pedestrians on optimal or preferred locations to cross. Even though various marking are provided in the MUTCD, “the ‘international’ (also known as ‘ladder’ or ‘zebra’) markings are strongly preferred, particularly at uncontrolled locations, because they are far more visible, which is particularly important at night or in low light conditions (e.g. rain).”
The Board recommends the use of the ladder design, as is the City’s current policy, rather than the traditional design endorsed by the WVDOH. The following illustration is a comparison of crosswalk designs.
Figure 2: Crosswalk design examples
The MUTCD requires a minimum crosswalk width of 6 feet. The Florida Department of Transportation recommends a 10-foot wide ladder crosswalk design at locations serving large numbers of persons on high use thoroughfares.
The Board recommends the use of inlay tape and thermoplastic materials (as is current City Policy) which are more cost-effective in the long run even though they are more expensive on first application. “Both inlay tape and thermoplastic are more visible and less slippery than paint when wet.” (walkinginfo.org)
Where crossing times are measured at signalized intersection, the general standard rate for pedestrian travel in a crosswalk is to be calculated to be 4 feet per second. This figure may be adjusted to accommodate the needs of special populations such as persons with disabilities, elderly persons or young school children.
Installation of Crosswalks at Signalized and Unsignalized Intersections
“Many pedestrians consider marked crosswalks a tool that enhances their safety and mobility. They view the markings as proof that they have a right to share the roadway, and in their opinion the more the better. Many pedestrians do not understand the legal definition of crosswalk and think no crosswalk exists unless it is marked. They may also think that drivers will be able to see the crosswalk markings as well as they do, and they assume that it is safer to cross where drivers can see white crosswalk lines.” – Zegeer, C.V., Stewart, R.J., Huang, H.H., and Lagerwey, P.A. Safety Affects of Marked Vs. Unmarked Crosswalks at Uncontrolled Locations: Executive Summary and Recommended Guidelines. FHWA-RD-01-075. Federal Highways Administration, Washington, D.C., 2002.
Both marked and unmarked crosswalks can exist at intersection. In Virginia, any intersection where the speed does not exceed 35 miles per hour constitutes a place where a driver must yield right of way to any pedestrian crossing the highway. This standard is based on the MUTCD and is believed to be fully applicable in West Virginia as well.
According to Chapter 17, Article 10, of the West Virginia Code, where Pedestrian Rights and Duties are delineated, such pedestrian privileges are inferred in Articled 10-2 and Article 10-3 to be in both marked and unmarked crosswalks at an intersection.
The Federal Highway Administration (FHWA) authorized a study on crosswalks by Zegeer et al in 2005** which is considered to be the current authoritative guidance on marking crosswalks. The study identifies the following conditions to be used for marking crosswalks:
A summary of the Zegeer et al FHWA marked crosswalk study as summarized by Lance Dougald in his Report on Development or Guidelines for the Installation of Marked Crosswalks (Charlottesville, 2004) is provided below.
On pages 5 and 6 of his publication Dougald points out that the key element in the Zegeer report and others is “engineering judgment.” He notes that whenever the term is applied, the judgment needs to be documented.
“Engineering judgment” includes the following considerations:
Recommendations for installing marked crosswalks at uncontrolled locations are summarized in Figure 3, below.
Figure 3: Recommendations for Installing Marked Cosswalks at Uncontrolled Locations
Mid-block Crossing Design and Location
The location of mid-block crossings is a problem of concern in Morgantown due to the design of multiple lane thoroughfares in which no pedestrian refuge medians or islands are provided. Dan Burden has developed a “Triple-Four” crosswalk design (www.pedbikeimages.org) which utilizes a double ladder concept with a center pedestrian zone.
Figure 4: "Triple-Four" crosswalk design
This design provides an opportunity to improve visibility of the crossing area for drivers as well as the aesthetics of a crossing area. If installed with high visibility thermoplastics, and accompanied by a pedestrian actuated mid-block signal, pedestrian safety can be supported at high-activity crossing areas such as at a multi-modal transportation center, university class locations, fast food restaurants, office supply stores, shopping centers, and park and recreation areas.
General criteria for determining whether to install a mid-block crossing have been discussed in the previous justification section. Additional mid-block crossing decision-making are summarized from the MUTCD by the Sacramento Department of Public Works:
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Traffic calming is a method of designing roadways to require traffic to proceed at slower speeds, thus protecting pedestrians and motorists. It is in effect at all times and reduces the need for on-site enforcement personnel at multiple locations simultaneously throughout the City. The science and practice of traffic calming has been successfully used by the Morgantown Traffic Commission’s Traffic Calming Committee to address the dangers of excessive vehicular speed throughout the City. A city-wide Traffic Calming Plan (see Appendix M) has been approved by the Traffic Commission as a means to protect pedestrians and residents in all neighborhoods of the City.
The Pedestrian Safety Board fully endorses the Traffic Calming Plan and recommends that the improvements recommended be implemented in conjunction with pedestrian safety improvements (e.g., crosswalks, walk signals, signage) to maximize effectiveness in keeping the City’s residents safe.
Trails are non-motorized connectors which can be developed in various types of settings including stream banks and utility corridors. Trail construction has become a significant means for moving Morgantown forward in improving its walkability and the overall quality of life within the City. Most persons when they think of trails within Morgantown think of the Mon River/Decker’s Creek rail-trail network. But trail development in the City has been much more pervasive and needs to become even more so in the future. Well utilized trails now link Richwood Ave and Whitmore Park with the Decker’s Creek Trail. An elaborate network of park trails has already been established at White Park. More recently trails have been developed at Dorsey’s Knob Park as well as in other short, non-street locations throughout the City.
Trails are an important means for improving access between neighborhoods and for connecting walkable shopping, school or park destinations through greenway areas. Morgantown is a city which can benefit greatly from additional trail construction because of the hilly topography, narrow streets, and numerous dispersed neighborhood areas. One unutilized means for trail development is the use of utility rights-of-way in high density neighborhoods such as Sunnyside or Greenmont.
A problem that has emerged in the City is maintaining the safety and usefulness of trails when daylight is not available. With the changes taking place in the economy and in the multi-dimensional use of the trails, they can no longer be considered as exclusively a park or recreation resource. Morgantown’s trails are becoming more important to persons walking to work, services and academic classes.
This evolution is consistent with both the MPO planning and the national trends in which more and more person are pursuing alternate transportation as means for access to essential destinations. To support rather than discourage such evolution, it is important that morning and evening trail lighting be provided year-round in addition to locating call boxes in the most traveled sections of the trail. Such changes will support the goals of this Plan and help reduce traffic congestion.
Optimum trail widths are 8-14 feet with a 3-6 foot clear zone beside the trail. Shade trees are important contributors to the successful development of multi-purpose trails. (Burden, D. Street Design for Healthy Neighborhoods. 2002)
There are still other important ways by which people make green connections within the City. These are stairs, trails and paths which are means by which people can travel from one street to another without following established streets, lanes or alleys. In Wiles Hill and Woodburn there are stairways which link parallel or adjacent streets in such a way that people can travel more directly and efficiently between residential locations and downtown destinations. These stairways are located on public rights-of-way and were established before 1940. Some maintenance has been performed, but more is needed. Increased lighting would also improve year-round safety.
Surfaced trails which are not of rail-trail width and unsurfaced paths are greenways which have importance in neighborhoods as connections between homes, parks, schools and shopping areas. These less developed greenways provide a means of “getting around” in neighborhoods. Because of their directness, they can become incentives for travelers to walk to a destination rather than to use motorized transportation.